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工程设计企业混合所有制改革路线探讨

发布时间:2019-07-23 09:02:42 作者:张涛1530 审核编辑:本站小编 点击:下载该Word文档收藏本文

混合所有制改革是20世纪90年代提出的改革方案,目的是引入民资促进生产力发展。20世纪90年代开始,我国允许国内民间资本和外资参与国有企业改组改革,经济改革的实践证明,混合所有制能够有效促进生产力发展。2013年11月9日十八届三中全会《决定》提出“积极发展混合所有制经济”。国有企业混合所有制改革一直在稳妥推进,且已建立起日趋完善的政策体系。据不完全统计,中央企业混合所有制企业户数占比已高达67.7%,一半以上的省级地方监管企业及各级子公司中混合所有制企业数量占比也超过了50%。2019年5月17日,国家发改委召开主题新闻发布会,披露了截至目前,已经推出3批50家重要领域的混改试点,今年要在前三批混改试点的基础上,进一步增加数量、扩展领域,启动开展第四批混改试点工作。第四批试点企业共160家,其中,中央企业系统107家,地方企业53家。混合所有制改革已进入深水区,而且随着改革推进,预计不久的将来,将会全面放开。

笔者所在的企业,是一家由混合所有制经股权收购而变为纯国资的电力工程设计企业,国资企业的种种限制,已限制了企业的发展,混合所有制改革的热情已无法阻挡。下面就从政策支持、改革动力、改革实施要点路径、风险控制等几方面做研讨。

一、政策支持

《中共中央关于全面深化改革若干重大问题的决定》于2013年11月15日表决通过,明确提出“(6)积极发展混合所有制经济”。允许更多国有经济和其他所有制经济发展成为混合所有制经济。国有资本投资项目允许非国有资本参股。允许混合所有制经济实行企业员工持股,形成资本所有者和劳动者利益共同体。

国务院2015年9月23日下发《国务院关于国有企业发展混合所有制经济的意见》(国发(2015)54号)明确提出,分类推进国有企业混合所有制改革,分层推进国有企业混合所有制改革,鼓励各类资本参与国有企业混合所有制改革,建立健全混合所有制企业治理机制,建立依法合规的操作规则,营造国有企业混合所有制改革的良好环境。

2017年11月29日国家发改委下发《关于深化混合所有制改革试点若干政策的意见》发改经体〔2017〕2057号,对国有资产定价机制、职工劳动关系、土地处置和变更登记、员工持股、集团公司层面开展混合所有制改革、试点联动、财税支持政策、工资总额管理制度等做了明确指导。

2019年3月5日,第十三届全国人大二次会议5日上午9时在人民大会堂开幕。会上,国务院总理李克强代表国务院作政府工作报告。政府工作报告“三、2019年政府工作任务(八)深化重点领域改革,加快完善市场机制。”中提到:积极稳妥推进混合所有制改革。完善公司治理结构,健全市场化经营机制,建立职业经理人等制度。将竞争性业务全面推向市场。国有企业要通过改革创新、强身健体,不断增强发展活力和核心竞争力。

二、改革的动机和必要性

1、电力设计业务市场萎缩严重,转型发展压力大

受宏观环境影响,经济放缓,电力能源投资热情降低,电力工程勘察设计行业增速放缓,市场竞争激烈程度。根据行业专业咨询机构的数据统计显示,“十二五”期间勘察设计企业的营业收入和利润增速均步入下降通道,“十三五”期间也不会有增长。虽然有一带一路、重点基础设施建设等积极因素,但行业整体的市场发展空间仍具有很大的不确定性。在“十三五”时期,工程设计企业推动业务结构和业务布局以及内部运营管理的转型显得愈发紧迫。

2、业务拓展的模式比较单一,资本运作困难

电力工程勘察设计企业在转向新兴市场的过程中,主要通过自身经营团队或新组建市场团队等内生型手段拓展多元化业务,运用兼并、收购等方式进行外部优质资源整合的模式还未成为主流,一方面受制于国有企业层数的制约;一方面受国资限制,资本体量和运作也不够灵活,缺乏创新,通过股权交易战略推动业务拓展的步伐不断加快的需求增大。因此,国有设计企业有必要探索推进引入具有较强资本运作能力的民营企业,利用混合所有制经济的优势,使公司降低国有控股带来的诸多束缚。

3、受制于国家刚性政策,企业活力不足

作为国有电力工程设计企业,需执行国有资产管控框架下对组织设计、薪酬考核、商业模式、业务开展等各方面的管理政策,具体如工资总额、薪酬体系、企业层数、法人数量等,因此,国有工程设计企业根据所处行业市场竞争态势进行调整的自由度较小;此外,国有企业在合规性上要求更加严格,决策流程相对较长,对企业的敏捷性和灵活性的有效提升造成一定影响,已不能满足日益复杂多变的市场需求和愈发多元化的竞争格局。

三、改革路径及实施要点

企业混合所有制改制流程,一般包括制订改制方案和内部决策、混改方案审批、财务审计及资产评估、挂盘交易阶段和投资者遴选、协议签署与交割阶段、办理变更登记等六个主要环节。

1.制订改制方案和内部决策

国有电力设计企业完全处于充分竞争行业,且同质化非常严重。已改制和整合完成的中能建和中电建设计企业。背靠大树,航空母舰,具有非常好的发展前景。而笔者所在的企业,规模小,但好在有根据地市场,也有集团业务的支撑,具备开展混改的最基本条件。目前混改分为三类:一是引入非国有资本参与国有企业改革;二是国有资本对发展潜力大、成长性好的非国有企业进行股权投资;三是探索实行混合所有制企业员工持股。笔者所在的企业,可以考虑引进相关行业非国有资本增资+员工持股的方式来进行混合所有制改革。最终保障国有资本控股50%以上,员工持股10%左右(单个员工不超总股本的1%),而非国有资本则可以设置在40%左右,最终方案以此进行设计。核心是拟引入的资本情况,拟引入的规模,基本操作路线、员工持股方案(可考虑个人通过第三方持股平台代为持股)等编制。在完成增资扩股的方案论证后,混改企业应当针对增资扩股方案进行内部决策,形成董事会决议和/或股东会决议,员工持股方案还应当经职工代表大会审议通过。

2.混改方案审批

根据《企业国有资产交易监督管理办法》(国务院国有资产监督管理委员会、财政部令第32号,以下简称“32号令”)第34条规定,国家出资企业的增资扩股方案需要报送国资监管机构审批;根据第35条的规定,国家出资企业下属子企业的增资扩股方案需要报送国家出资企业,即“一级央企/一级地方企业”审批;有权单位对增资扩股方案作出的批复,是混改企业进入产权交易所发布增资公告的前提条件。笔者所在的企业,属于“一级央企”的三级企业,根据增资扩股比例方案设定,则需要将混改方案按照三级--二级--一级的路径上报审批即可。

3.财务审计及资产评估

根据32号令第38条的规定,增资扩股的方案获得批准后,增资企业应当委托具有相应资质的中介机构开展审计和资产评估。笔者所在的企业,资产情况多种多样,既有重资产的办公房产持有,亦有机器设备等轻资产,还有工程合同在手。所以在资产评估时,需接受上级管理单位和第三方中介机构的双重审计和资产评估审计,以切实防止因为改革而导致国有资产流失。

4.挂盘交易阶段和投资者遴选

此阶段根据交易所规定,提交相关交易申请资料。交易所发布《增资公告》,对意向投资者进行资格审查,同时接受意向投资者对拟增资改革企业的尽职调查和混改企业对投资者进行的反尽职调查。在对符合条件的意向投资者进行充分了解后,则进入投资者遴选。通过竞价、竞争性谈判或综合评议择优确定投资者后,混改企业应当对谈判小组及评议小组确定的最终投资者名单进行书面确认。这个时候,代为员工持股的平台公司持股资本一并进入增资结果,形成《增资结果通知书》交产权交易所。

5.协议签署与交割阶段

在收到《增资结果通知书》后,混改企业和最终投资者在各自履行完毕内部决策程序后,便可签署《增资协议》。并根据《增资协议》的约定缴付出资后,产权交易所将对增资结果进行公告,公告内容包括项目名称、投资方名称、投资金额、持股比例等。

6.办理变更登记

在最终投资方与增资企业等相关方签订《增资协议》并支付增资款后,需由增资企业相应修改公司章程,并完成注册资本及股东情况的产权变更登记及工商变更登记。

四、改革的法律和财务风险

1.法律风险

国企混合所有制改革旨在通过引入非国有资本,实现资源的市场化配置,从而建立真正意义上的现代产权制度。然而,实践中的国企改制往往涉及多方法律关系,存在诸多法律风险。

(1)国有资产交易行为无效

国有资产交易行为的法律效力是企业改制成败的关键。而国有资产的交易行为中又存在诸多法律风险,如交易行为未按规定经有权机构审批、交易行为未按规定在产权交易机构中公开进行(除经国资委批准采取非公开协议转让等方式外,企业国有资产交易均应在依法设立的产权交易机构中公开进行,否则转让行为无效)。上述任何一种资产交易行为都可能会被法院认定为无效,从而导致国企的整个所有制改革以失败而告终。

(2)国有资产流失

国企改制难免会牵涉到企业管理者利益,国有企业内部的相关利益关系人很可能向审计、评估人员施压,恶意评低国有资产的实际价值,造成国有资产的流失。如:在对国有资产进行审计、评估时,仅评估其实物资产,忽略对其中中标所有权、合同所有权等无形资产的评估,由改制后的企业无偿使用,从而造成国有资产的流失。

(3)职工持股权利得不到保障

员工持股问题也存在着各种潜在的法律风险。如员工持股是通过第三方持股平台来间接持有企业股份,这样可以方便地管理员工的股权变动而不影响集团自身的股权结构。但实践中还存在一些员工持股工会,其大多被定性为社团法人,因此根据相关轨道不得从事盈利性经营活动,进而无法通过工商登记成为法律认可的股东,职工作为股东的权利也就难以保障。至于隐名股东委托持股的做法,法律风险可谓更大,作为隐名股东的员工其处置权、表决权很难实现,法律风险较高。

2.财务风险

随着国有企业进行混合制改革,一些潜在的财务风险也逐渐凸显出来,在当今特殊的国内外背景下,我们应该了解国有企业在进行混合制改革中可能遇到的财务风险,以便能够及时采取有效的措施进行预防和控制。

(1)投资不确定性的风险

很多国有企业为了加速企业的发展,一般都会采用引进投资或者对外进行投资的方式,但是投资是有风险的,很多投资者预期的投资效果和实际的效果总是差距很大,而且投资的效果不仅和企业的经营状况,还和企业所处的内外部环境有关系。由于这种情况的存在,国有企业在寻找投资的对象时,存在着很大的不确定性。而且如果企业的管理者没有意识到这种风险存在的情况时,可能会使得企业陷入经济危机之中。最终使得企业不仅没有达到预期的发展效果,反而还会影响企业的资金回报率。因此,国有企业进行混合制改革时。应该考虑到投资不确定性会给企业带来的风险。

(2)经营决策失误的风险

经营风险主要是指在企业的一系列生产活动中,由于公司的高层管理者在决策时考虑问题不周全或突发政策性影响等各种因素导致决策失误进而使得资金流动不畅,影响企业价值的实现。这种情况的出现,会严重企业的长远发展。

五、处理办法

1.法律风险防范

为减少国企改制带来的上述法律风险,建议重点考虑和审查以下内容:

(1)首先分析、确定国企改制所适用的法律法规和政策,避免适用法律依据错误。

(2)明确改制实施方案、职工安置方案是否经过职工(代表)大会的审议、通过,必要时可进行法律见证或者公证手续。

(3)是否对被改制企业经过严格的清产核资和资产审计评估程序,有关结果是否经过所属国有资产监督管理部门的确认、核准或者备案,并在被改制企业显著位置进行公示。

(4)被改制企业所占用范围内的国有资产、合同产权、引申中标产权等是否纳入改制范围,经过中介机构的审计和评估。

(5)是否存在重大的债权债务诉讼、仲裁及行政处罚。

2.财务风险防范

国有企业进行改革时会面对各种各样的财务风险,但是完全消除这些财务风险是不可能的,我们只能采取一些措施尽可能降低风险对企业产生的不利影响。国有企业在进行混合制改革时必须加强防范,本研究认为可以采取以下几个措施:

(1)提高投资者的风险意识,确立科学的投资策略

企业管理者的投资风险意识直接影响到企业的经营决策,如果管理者在进行投资时没有考虑到可能产生的风险,会造成严重的决策失误。提高自身的知识水平和管理素质对于管理者来说是至关重要的,高素质的领导者能够科学理智地进行投资,而且在投资之前,不仅分析企业目前所处的内外部环境,还对进行投资之后可能出现的一些风险进行了分析,这样的理性投资者会给企业带来较高的投资报酬。

(2)建立有效的决策机制,提高决策的正确性

对于经营决策的制定者,应该根据积极慎重的原则,充分了解相应的政策、规定等相关信息,制定合理合规的经营决策。在保证经营决策可行的条件下,还要对这种决策的前景进行分析,并且要时刻关注可能产生的问题和风险,制定重大风险预警机制和重大风险来临时的应急处理预案。因此决策机制的有效性对于防范风险具有重要的作用,通过严格的董事会决策程序和制度来建立规范有效的风险监控体系,尽可能地降低风险对企业的不利影响。

六、结论

实施混改的目的在于促进国有企业转换经营机制,推动现代企业制度和法人治理结构的建立完善,实现各种所有制资本取长补短、相互促进、共同发展。同时,也可以提升设计企业内外部活力,更好的适应当下工程建设机制改革,确保国有资产的保障增值。

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